are derived from the salmon fishing industry. It is clear therefore that not only expenditures for the ordinary functions of the Government of Alaska but also funds for the maintenance of its school system and public institutions depend upon the perpetuation of the salmon resources of Alaskan waters. It is also an important fact that Alaska's trade with the United States is confined to water transportation, and the facilities upon which such intercourse is based are indirectly dependent upon the stability and prosperity of the salmon industry. The views hereinbefore expressed are strongly supported by members of Congress, the Delegate to Congress from the Territory of Alaska, a large section of the American press, and business interests and residents of the Pacific Coast generally. Unless there is found a prompt solution to the question of affording adequate protection to the salmon resources of Alaska, there is every likelihood that existing tension will be further increased and the situation further complicated. Notwithstanding the fact that the American Government has counseled against and actively discouraged any group of citizens from taking action which might make more difficult an adjustment by diplomatic processes the issues which have arisen, this Government has reason to believe that there may be efforts made by various elements on the Pacific Coast to initiate activities calculated to disturb the commercial relations of this country and Japan. There must also be envisaged the possibility of the occurrence of serious and unforeseen incidents between American and Japanese fishermen in the fishing areas over which controversy has arisen. It is important to consider in this situation the actual and potential influence of the radio and press. Through both of these mediums of publicity the attention of the American public is frequently called to the presence of Japanese vessels in Bristol Bay and the potential injury which such vessels might inflict upon American employment and investments in the Alaska salmon industry. Stimulated and encouraged by this publicity, the organized longshoremen at Pacific ports already have gone on record as contemplating action toward the disruption of commercial relations between Japan and the United States through the suspension of the handling of Japanese freight cargo. The possibility of the Maritime Federation's taking action in support of the fishermen's unions is increased by the fact that the majority of American fishermen have their permanent residence on the Pacific Coast and are members of the Federation. The broader public apprehension in regard to the salmon fisheries is reflected in draft legislation recently introduced into Congress for the protection of the Alaska salmon industry. This proposed legislation is conceived by its supporters to be based upon just and equitable prin ciples flowing generally from the consideration that American citizens have established prior superior rights and interests with respect to the resources in question. Moreover the support of the proposed legislation is increasing and, both in and out of Congress, is becoming national instead of sectional in character. The American Government is confident that the Japanese Government will realize the seriousness of the problem involved in this situation and the urgency of there being taken early and effective action to dispose of it. The American Government also believes that any solution or arrangement arrived at for the protection of Alaska salmon resources should cover not only the Bristol Bay area but also include and afford protection to all principal American salmon fishing waters adjacent to the Territory of Alaska. The emphasis which has been placed in this statement upon the situation in Bristol Bay arises from the fact that the activities of Japanese fishing vessels have been chiefly observed there; it should not be inferred for this reason that a similar situation in other Alaskan waters would be of less concern to American fishing interests. Having in mind the high importance of the Alaska salmon fisheries as an industry fostered and perpetuated through the efforts and economic sacrifices of the American people, the American Government believes that the safeguarding of these resources involves important principles of equity and justice. It must be taken as a sound principle of justice that an industry such as described which has been built up by the nationals of one country cannot in fairness be left to be destroyed by the nationals of other countries. The American Government believes that the right or obligation to protect the Alaska salmon fisheries is not only overwhelmingly sustained by conditions of their development and perpetuation, but that it is a matter which must be regarded as important in the comity of the nations concerned. These beliefs are reinforced by the fundamental consideration that Americans will always regard each appearance of a foreign fishing vessel in Alaskan waters as a danger or threat to their employment and general welfare. Instruction contained in Department's no. 308. HULL 711.008 North Pacific/264 Memorandum by President Roosevelt to the Counselor of the Department of State (Moore) WASHINGTON, November 21, 1937. JUDGE MOORE: I wish you would talk with the Secretary and tell him I suggest that you proceed immediately to the study of the possibility of adopting a new policy relating to off-shore fishing in Alaska. The policy would be based on the fact that every nation has the right to protect its own food supply in waters adjacent to its coast in which its fish, crabs, etc., leave at certain times of the year on their way to and from the actual shore-line or rivers. I am fully aware of the old decisions in sealing decisions and awards. Nevertheless in the case of Alaska, we are faced with the problem of food supplies rather than of fear [fur?], which can hardly be classed as a necessity of life. Therefore, if on the facts it is necessary to protect fish which would normally be used for food in the United States on their migrations up to any reasonable distance from the actual shore, we would be giving some needed protection to one of our national food supplies. I make the suggestion of a study of this kind only with the thought that Japan may seek to delay action and that we can not go along with much further delay. It occurs to me that a Presidential proclamation closing the sea area along the Alaskan coast to all fishing— Japanese, Canadian and American-might be a way out-in other words a kind of marine refuge where one is essential to end depletion. I do not know what Japan could well say in the event of such a proclamation and I am reasonably certain that the Canadian Government would approve and probably do the same thing along their British Columbia coast-line. F[RANKLIN] D. R[OOSEVELT] 711.008 North Pacific/212: Telegram The Ambassador in Japan (Grew) to the Secretary of State TOKYO, November 22, 1937-5 p. m. [Received November 22-7: 33 a. m.] 560. Department's 308, November 19, 6 p. m., and 309, November 20, noon. 1. We have no suggestion to offer with regard to the memorandum. 2. As previously reported, the Minister for Foreign Affairs' knowledge of English is not too secure and in order to prevent any misunderstanding it is my intention when presenting the memorandum also to leave with the Minister an aide-mémoire along the lines of the Department's "supplemental comment and instructions". 3. However, before taking action I would appreciate clarification as to the precise use to be made of paragraph 4 of "supplemental comment and instructions": Does the Department desire that I use the paragraph only as guidance in answering questions which the Minister might put to me now or later or is the substance thereof to be included in my initial written presentation of our Government's views? 4. Tomorrow is a Japanese national holiday and the Foreign Office will not be open. GREW 711.008 North Pacific/265 The Under Secretary of State (Welles) to the Counselor of the Department of State (Moore) [WASHINGTON,] November 22, 1937. DEAR JUDGE MOORE: In the course of a conversation which I had the opportunity of having with the President Sunday 72 afternoon at the White House, he happened to tell me that he had seen our memorandum to the Japanese Government on the subject of the Alaskan fisheries and that he was heartily in accord with the step proposed. He added that he had been thinking a good deal about the subject and I understood him to say that he had dictated a memorandum 74 on it which I assume will be sent to you. He asked me to say to you that he felt the time had come when the United States should consider a pretty far-reaching move with regard to this whole subject. He said that what he had in mind was an Executive proclamation by the President, declaring that on account of the peculiar scientific conditions which exist with regard to the habits of salmon and which consequently affect the salmon fisheries industry, the waters of the Pacific Ocean between the three mile limit and that point of the ocean bed where the water reaches a depth of 100 fathoms, must be considered as territorial waters indispensable to the proper safeguarding of this important portion of the food supply of the American people. He stated that he had under consideration the proclamation of these waters as territorial waters of the United States and as a national game preserve within which no fishing, whether American or of any other nationality, could be undertaken, except upon the prior issuance of a license permitting such fishing, to be issued by the Government of the United States. The President called special attention to the fact that these territorial waters for the purpose indicated should extend from the United States-Canada boundary north of Prince Rupert, around the Aleutian Islands, to the center point of the Bering Strait dividing the Soviet Union from the United States. The President emphasized the fact that Bering Strait, as he recalled it, did not attain a depth of more than about 150 to 200 feet and that, consequently, such proclamation on his part would make Bering Strait a closed channel for fishing purposes, except for such fisheries as might be licensed 23 November 21. See telegram No. 309, November 20, noon, to the Ambassador in Japan, p. 763. Infra. by the Soviet Union or by the United States. When the proper time came he indicated the step to be taken should be explained to the Soviet Union so that they would understand that the step taken was in no way directed against them, but was undertaken solely for the protection of our own national resources. The President believed that as a first step you might request the Navy Department to supply you with the ocean charts which they have available and which will show where the 100 fathom line, above referred to, runs so that we may be certain in advance that, from the technical standpoint, there will be no difficulty involved in the delimitation of the territorial waters he has in mind. If there are any points above mentioned which are not very clearinasmuch as you know I am not familiar with the subject matter of this question which you have been handling-you may wish to get further clarification directly from the President. Insofar as I can recall, the specific suggestions which he mentioned are contained above. S[UMNER] W[ELLES] 711.008 North Pacific/266 Memorandum by President Roosevelt 75 WASHINGTON, November 22, 1937. I am delighted with your memorandum in regard to Alaska salmon which you sent to Grew. You speak of the "shelf" extending as a kind of "bridge" from the shore line out to keep [deep] water. That gives me the thought that it might be possible, if the worst comes to the worst, to forbid fishing on this "shelf" and to a distance of perhaps twelve miles beyond it into real deep water. Could you: (1) Let me have a map showing the depth contours of the Alaskan Coast, and, (2) The estimate from the experts as to which contour depth could be chosen as affording complete protection. You are right in saying that far more than the Bristol Bay area is involved. Whatever we do should protect the entire shore line of the whole of Alaska. Please read this in connection with the previously dictated memorandum appended hereto.75 I think it is well worthwhile to stress not only the investment in this American industry but also its relationship as a large factor in the American food supply. F[RANKLIN] D. R[OOSEVELT] 75 Addressed to the Secretary of State and the Counselor of the Department of State. 75a Presumably the memorandum of November 21, p. 768. |